10 Thematic strategy on the prevention
and recycling of waste
| (24611)
10113/03
COM(03) 301
| Commission Communication: Towards a thematic strategy on the prevention and recycling of waste.
|
| Legal base | — |
| Document originated | 27 May 2003
|
| Deposited in Parliament | 11 June 2003
|
| Department | Environment, Food and Rural Affairs
|
| Basis of consideration | EM of 25 June 2003
|
| Previous Committee Report | None
|
| To be discussed in Council | No date set
|
| Committee's assessment | Politically important
|
| Committee's decision | Cleared
|
Background
10.1 According to the Commission, improving waste management has
been recognised as a major environmental challenge both internationally
and within the Community. In particular, the Sixth Environmental
Action Programme envisages the decoupling of resource use and
the generation of waste from economic growth being addressed through
a so-called thematic strategy. In view of this, the Commission
has now brought forward this Communication, its intention being
to stimulate debate, and so provide a first contribution towards
the development of such a strategy.
The current document
10.2 The Communication addresses the issues involved under a number
of headings, as follows.
TRENDS IN WASTE MANAGEMENT, AND ITS MAIN ENVIRONMENTAL IMPACTS
10.3 It notes that about 1.3 billion tonnes of waste is generated
within the Community each year, comprising five main streams,[14]
of which 2% is classified as hazardous. It points out that quantities
continue to grow, despite some waste generation having been decoupled
from economic growth in a limited number of countries, and it
suggests that there is general agreement that, in the absence
of additional measures, levels of waste within the Community are
likely to increase for the foreseeable future. As regards waste
treatment, it says that information is difficult to obtain, but
that, in the case of municipal waste, there has in the Community
as a whole[15] been some
move away from landfilling towards alternatives like recycling
and composting, although landfill still accounted for the majority
of such waste in the late 1990s. It also notes that, although
municipal waste often receives the most attention from policy
makers, other waste flows are at least of comparable importance:
for example, whilst municipal waste accounts for only about 1%
of hazardous waste, manufacturing waste accounts for more than
75% in a number of Member States.
10.4 In terms of the environmental issues related
to waste management, the Communication points out that, despite
significant improvements in waste treatment methods in areas such
as landfill and incineration, problems still remain, and that,
in any event, prevention (involving cleaner production technologies
and better product design) and recovery can be equally important
in reducing environmental impacts, in so far as they reduce the
extraction of primary raw materials and the emissions arising
from subsequent production processes.
ASSESSMENT OF THE COMMUNITY'S EXISTING WASTE MANAGEMENT
POLICY
10.5 In noting that Community policies necessarily
need complementary action by Member States, the Communication
nevertheless points out that the common set of principles and
control procedures needed to ensure a high level of protection
across the Community have been established by "horizontal"
legislation.[16] It says
that (among other things) this has established the waste management
hierarchy, the "polluter pays" principle, the basis
of comprehensive control systems, and the requirement that waste
management should not adversely affect human health and the environment.
In addition, the waste shipment regulation has established a harmonised
system governing the cross-border movement of waste.
10.6 The Commission points out that these more general
requirements are complemented by legislation in specific areas
(such as landfill and incineration), or which relates to specific
waste streams (such as packaging, end-of-life vehicles, and waste
electronic products), or to particular hazards (such as heavy
metals). It suggests that the various measures taken in recent
years, including provision for separate collection systems in
the (otherwise heterogeneous) municipal waste stream, have reduced
the environmental impact of waste treatment, and will do so increasingly
as they are fully implemented. It suggests that the increasing
emphasis on producer responsibility has also made an important
contribution.
10.7 The Communication then seeks to identify areas
where further progress can be made. These include better implementation
by Member States; the need to explore further the relationship
between the volume of waste generated and the degree of hazard
it presents, leading to the setting of more robust targets; the
need for a more comprehensive approach to recycling, going beyond
the limited number of areas for which targets have been set, and
taking into account best environmental options and differences
between materials; and harmonised standards for recycling operations.
The Communication also suggests that there is a need to clarify
how terms such as "waste", "disposal" and
"recovery" should be interpreted in the light of recent
legal uncertainties.
SETTING OF TARGETS
10.8 The Communication says that in general an optimal
management strategy will include a combination of waste prevention,
material recycling, energy recovery and disposal options, but
that the monetary value of these options is often not reflected
in the market place. The Commission has therefore launched a study
into the cost-benefit relationship of the different approaches,
which should be available by the end of 2003, and should assist
the development of waste prevention targets (which it says have
arguably hitherto focussed too much on the quantity of waste generated,
as opposed to its environmental burden, and have also been hindered
by a poor statistical base).[17]
It notes that, by comparison, the setting of targets for recycling
is both better established and less complex, and it therefore
suggests that the thematic strategy should concentrate on improving
this area, notably by focussing more on the materials involved
and less on end-of-life products, whilst continuing to use both
approaches as appropriate. It also suggests that, whereas current
legislation seeks to achieve the same target in all Member States,
it might in future be better both economically and environmentally
to set a target for the Community as a whole, and let market forces
determine which facilities can achieve this in the most cost-effective
manner. Finally, it invites views on whether targets might be
indicative, rather than legally binding.
MAIN ELEMENTS OF A THEMATIC STRATEGY
10.9 This part of the Communication draws together
the earlier analysis to produce four "building blocks"
for the envisaged thematic strategy — core instruments to
promote waste prevention and recycling; measures to close the
waste recycling standards gap; and accompanying measures. As such,
it is concerned with the way in which waste prevention and recycling
targets can be implemented, by means of a mix of regulatory, voluntary
and economic instruments.
10.10 In the case of prevention, it says that
any quantitative improvement means changing the behaviour of households
and producers, where it suggests that there could be added value
in the co-ordination of national approaches to the market place,
whereas qualitative prevention — exemplified by the proposals
in the Commission's White Paper on future chemical policy —
places emphasis on producers and downstream users assessing product
safety, and the substitution of less dangerous substances, coupled
with a risk-based authorisation system for substances of very
high concern. As regards recycling, the Communication
points out that the main obstacle is one of cost, and that consequently
economic and market-based instruments, such as a landfill tax
to increase the cost of alternative treatment methods, are thought
to be the most promising approach. It also highlights the role
of producer responsibility in relation to such areas as product
design, together with the potential role which measures such as
tradable certificates (as used in the UK) and pay-as-you-throw
schemes might play (though it recognises that enforcement and
other issues would need to be taken into account). As regards
accompanying measures, the Commission identifies three
broad areas — improvement of the legal framework, the promotion
of research and development, and promoting demand for recycled
materials.
The Government's view
10.11 In his Explanatory Memorandum of 25 June 2003,
the Minister of State (Environment and Agri-Environment) at the
Department for Environment, Food and Rural Affairs (Mr Elliot
Morley) says that the Government is able to support much of the
analysis in the Communication, and that many of the suggested
amendments have merit, though he also points out that the Commission
has recognised that feedback is required to narrow the options
before a complete or precise set of actions can be prepared to
meet the objectives set out. He also suggests that the Commission's
eventual proposals will contain a mix of aspirational goals, based
on objectives already agreed, along with some new instruments
and additions to (or revisions of) existing instruments.
10.12 The Minister says that the Government will
want to consider the implications of the various proposals in
detail over the next few months, and will be looking at these
to see that Community and national actions are kept in proportion.
In the meantime, he points out that, since the Communication does
not amount to a proposal for action, no formal Regulatory Impact
Assessment has been carried out, but that potential impacts might
include the costs to both industry and government of implementing
new or revised measures; the funding of local authorities to increase
recycling; and research and development costs, some of which might
be balanced by efficiency savings.
Conclusion
10.13 This is an interesting document, in as
much as it provides an analysis of the current situation within
the Community in this area, together with a number of suggestions
regarding the direction which waste management policy might take
in future. For that reason, we are drawing it to the attention
of the House. However, we note that it will be followed by the
thematic strategy which it is seeking to develop, and that in
turn will presumably lead to specific legislative proposals in
certain areas. In view of this, we do not think any further consideration
of this subject is called for at present, and we are therefore
clearing the document.
14 These are mining and quarrying (29%), manufacturing
waste (26%), construction and demolition waste (22%), municipal
solid waste (14%), and agricultural and forestry waste. Back
15
The Commission stresses that, for this (and other) waste streams,
there are large variations between Member States. Back
16
Such as the waste framework and hazardous waste directives. Back
17
The Commission notes that the Waste Statistics Regulation is intended
to close this gap, but that it will not be possible to assess
trends until 2006-2008. Back
|
